United Nations Political Missions – Report of the Secretary-General
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UNITED NATIONS POLITICAL MISSIONS REPORT OF THE SECRETARY-GENERAL UNITED NATIONS POLITICAL MISSIONS UNITED NATIONS POLITICAL MISSIONS: REPORT OF THE SECRETARY-GENERAL Summary This report is submitted pursuant to resolution 67/123, whereby the General Assembly requested the Secretary-General “to submit a report on the overall policy matters pertaining to special political mis- sions, including their evolution, trends, as well as their role in the activities of the Organization relating to the maintenance of international peace and security and to make recommendations to increase their overall transparency and effectiveness”. Contents I. Introduction . 2 II. Historical evolution of special political missions . 3 III. The present role of special political missions in the peace and security activities of the Organization . 7 IV. Key policy issues and challenges . 16 V. Recommendations to improve transparency and effectiveness . 24 Annex . 26 1 REPORT OF THE SECRETARY-GENERAL I. INTRODUCTION 1. At the heart of conflict, more often than not, are political issues. It should come as no surprise, therefore, that political missions have been at the very centre of United Nations efforts to maintain international peace and security since the establishment of the Organization. From the deploy- ment of Count Folke Bernadotte to the Middle East in 1948 to the establishment of the United Nations Assistance Mission in Somalia in 2013, political missions have, in different forms, played a vital role in conflict prevention, peacemaking and peacebuilding. 2. In partnership with other actors, those missions have accompanied Member States through his- toric times of change: from supporting the decolonization and independence processes in Africa and Asia to assisting Central America in ending its civil wars and building peace in the 1990s; from facilitating the Bonn Agreement on Afghanistan in 2001 to aiding Nepal in its transition to peace and democracy; from assisting Libyans in organizing their first elections in almost 50 years to helping Somalia open its most hopeful chapter in a generation. 3. In the 1990s, those missions became collectively known as special political missions. In the two decades that followed, special political missions have grown significantly in number, size and the complexity of the mandates they are asked to implement. While many of their core functions stem from the early days of the Organization, the range of tasks carried out by these missions today is unprecedented, and a reflection of the growing importance Member States attach to this instru- ment. 4. While special political missions vary widely in their functional roles and characteristics, they can be broadly defined as United Nations civilian missions that are deployed for a limited duration to support Member States in good offices, conflict prevention, peacemaking and peacebuilding. They have been grouped in three main categories, or clusters, namely, special envoys; sanctions panels and monitoring groups; and field-based missions. This distinction will be used for the pur- poses of this report (see section III for a more detailed discussion). 5. This is my first thematic report on special political missions to the General Assembly. As request- ed in resolution 67/123, this report provides information on overall policy matters pertaining to special political missions, including their evolution and trends, as well as their role in the activities of the Organization relating to the maintenance of international peace and security. It also con- tains recommendations to increase their overall transparency and effectiveness. 2 UNITED NATIONS POLITICAL MISSIONS II. HISTORICAL EVOLUTION OF SPECIAL POLITICAL MISSIONS 6. Although the term “special political missions” emerged only in the 1990s, the history of United Nations civilian missions with political functions goes back much further. Political missions have carried out good offices, conflict prevention, peacemaking and peacebuilding functions since the early days of the Organization, fulfilling the spirit and letter of the Charter of the United Nations. Secretary-General Dag Hammarskjöld and other world leaders often referred to those deploy- ments as “special missions” or “United Nations presences”. Those early experiences built a solid foundation for the special political missions we see today. Dag Hammarskjöld, the second Secretary-General of the United Nations, was instrumental in shaping political missions and their work. (UN Photo/JO) 7. The historical evolution of political missions has three distinct eras: a first period of new mission design (1948-early 1960s); a second period of relative inactivity (late 1960s-late 1980s); and a third period of rediscovery (post-cold war). This evolution was part of a broader trend of increased reliance by the United Nations on different mechanisms to promote and sustain peace and secu- rity. The evolution of peacekeeping followed a similar historical trajectory. 8. The period from the creation of the United Nations until the early 1960s was a fertile one for the design of a range of new missions. As a new institution, the United Nations was required to build and refine tools that could help to address emerging issues confronting the international com- munity, from mediating disputes in the Middle East and South Asia to supporting the transition to independence in post-colonial States. Political missions were one of the instruments that were developed during that period. 3 REPORT OF THE SECRETARY-GENERAL Security Council Meeting on Palestine Question in 1948. From left to right are Trygve Lie, UN Secretary-General, UN Palestine Mediator Count Folke Bernadotte and Security Council President Dmitry Z. Manuilsky. (UN Photo) 9. In 1948, the first United Nations mediator was appointed, when the General Assembly mandated a Mediator in Palestine (Count Folke Bernadotte) to work alongside the United Nations Truce Supervision Organization.1 Since then, successive Secretaries-General have deployed the services of high-level mediators or other envoys, either upon the request of the General Assembly or the Security Council, or in the context of the Secretary-General’s good offices mandate. 10. In that period, the Organization also designed a number of field missions. They included small political offices that carried out facilitation tasks, such as the United Nations presence in Jordan, established by the General Assembly in 1958. Its purpose was described as “watching local de- velopments, holding a finger on the pulse and keeping Headquarters fully informed about devel- opments in that area”.2 Those early decades also saw the deployment of larger civilian presences to support political transitions, particularly in the context of decolonization and self-determina- tion. For example, in 1949, the General Assembly established a United Nations Commissioner in Libya, mandated to assist the Libyan people in the formulation of a constitution and the estab- lishment of an independent government.3 11. From the late 1960s until the end of the cold war, the Organization curtailed its design of new political missions. To a large extent, this was a result of the cold war divisions that hindered de- cision-making in the Security Council as well as the General Assembly. The number of missions mandated by the two bodies decreased during this period. While successive Secretaries-General continued to rely on special envoys and good offices missions, larger field-based civilian missions were rarely deployed. 1 General Assembly resolution 186 (S-2) of 14 May 1948. 2 Ralph Bunche, statement to the 11th General Assembly of the International Press Institute, Tokyo, 25 March 1960. 3 General Assembly resolution 289 (IV) of 21 November 1949. 4 UNITED NATIONS POLITICAL MISSIONS 12. One of the relatively few missions created in this period was that of the Special Representative to the Middle East, with a distinctly regional mandate that heralded the role of the present regional offices. The Special Representative was appointed in 1967 to maintain contacts with Member States in the region in order to achieve a peaceful settlement. He set up an office with political and military advisers, and engaged in shuttle diplomacy in subsequent years to the capitals of the region and beyond. The office operated until 1973. 13. The end of the cold war created new possibilities for the international community to maintain, collectively, its common security. At the same time, the post-cold war world saw the emergence of a number of new threats, including new civil wars in many regions. Post-cold war political tran- sitions created increased demands for United Nations support, particularly in areas such as elec- toral assistance, constitution-making and the rule of law. From Central America to Africa, new missions were established to help Member States to meet those demands. The concepts behind the missions were not radically new, but rather a rediscovery of some of the models deployed by the Organization in earlier years. 14. Harking back to the smaller political offices established in the 1950s, the Organization relied on several similar missions in this period. This included the Special Mission to Afghanistan, de- ployed by the Secretary-General in 1993 at the request of the General Assembly, and mandated to canvass a broad spectrum of Afghan leaders and solicit their views on how the United Nations could best support national reconciliation and reconstruction. Also in 1993, a United Nations Office in Burundi was established